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Legislative Public Hearings to Consider the Habitat for Humanity Multifamily Development: Rezoning to HR-CC-CZ and associated Text Amendments
PURPOSE AND BACKGROUND: The Town has received a petition to rezone property at 8717 Rogers Road from HR-R (Historic Rogers Road-Residential) to HR-CC-CZ (Historic Rogers Road-Community Commercial, Conditional) to construct approximately 86 townhomes. An application for text amendments to the Land Use Ordinance associated with the project has also been received. Two ordinances, one for the requested text amendment and the other for the requested map amendment have been prepared; the Town Council must receive public input before reaching a decision on these requests.
BACKGROUND: In June 2025, Habitat for Humanity of Orange County submitted a concept plan for an affordable multifamily townhome development along the west side of Rogers Road. A formal petition for conditional rezoning and an application for text amendments were subsequently submitted in the fall of 2025, followed by agency review in the spring and summer of 2026. The proposal involves rezoning seven parcels, totally approximately 15.5 acres from HR-R to HR-CC-CZ conditional. The property can be seen in the attached vicinity map (Attachment C).
Applicant materials include the petition for change of zoning, an affordable housing summary, rezoning exhibit site plans and architectural drawings, recreation facility calculations, neighborhood information meeting summaries, and a Traffic Impact Analysis (TIA) (Attachments G-L). The applicant’s request for the associated text amendments to the Land Use Ordinance is provided as Attachment E.
In the text amendment application, the applicant requested changes in the LUO to: 1) allow for an increase in residential density in the HR-CC district from three units per acre to five units per acre and to reduce the minimum lot size for the HR-CC district to align with the new density, 2) allow for alternative ways to meet the street tree and shade tree standards, 3) to reduce the minimum separation of trees and pavement in certain situations, and 4) to add medium-size trees to the list of available trees in Appendix E of the LUO (Attachment B-1).
During the review process it was determined that some of the text amendment requests were not needed, such as the modifications to certain public street standards. The inclusion of use classification 19.100 (Open Air Markets - farm and craft markets, flea markets, produce markets) was added to the draft amendment based on conversations with the applicant about future activities at the development. New language relating to the building size for nonresidential uses, a requirement for the HR-CC district, was a necessary clarification for a project that would likely house some nonresidential uses in buildings with multiple townhomes units rather than standalone structures.
A draft rezoning ordinance has also been prepared and includes a list of draft conditions; it is anticipated that these may be further refined during the public hearing process (Attachment B-2). The final list of conditions must be mutually agreed upon by the Town and the applicant and will be binding. The Habitat proposal, rezoning and text amendments, was presented at the Joint Advisory Board meeting on October 1, 2026, and the text amendment request was referred to Orange County. Comments are provided: text amendment (Attachment F) and rezoning (Attachment N).
HR-R district was established in 2019 and the HR-CC district in 2021; both districts resulted from an extensive collaborative effort with the Town of Chapel Hill to develop zoning concepts that would help implement “Rogers Road: Mapping our Community’s Future,” a community-driven plan prepared by Rogers Road residents with assistance from the Marion Cheek Jackson Center. (To learn more about the report see the following link: Mapping Our Community's Future <https://www.townofcarrboro.org/DocumentCenter/View/5936/Mapping-Our-Communitys-Future-Report>.)
RECOMMENDATION: Staff recommends that the Town Council receive public input and consider whether the proposed text and map amendment (rezoning) are consistent with Town plans and policies as well as the advancement of the public health, safety and welfare.
Council action should include consideration/adoption of the following:
1. Consistency Resolution for the text amendment (Attachment A-1)
2. Draft ordinance for the text amendment (Attachment B-1)
3. Consistency Resolution for the map amendment (Attachment A-2)
4. Draft ordinance for the map amendment and associated conditions (Attachment B-2)
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Department
DEPARTMENT: Planning, Zoning, and Inspections
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Fiscal and Staff Impact
FISCAL AND STAFF IMPACT: The petitioner has submitted materials and fees, as applicable, for reviewing and processing this request, including providing envelopes for the mailed notice for the rezoning. Staff time is necessary for public notice and agenda preparation for advisory board review and public hearings.
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Community Impact
COMMUNITY IMPACT: If approved, the rezoning would allow for the development of a residential townhome development of 2- 3-, and 4-bedroom units at affordable and missing middle/workforce housing price points. This would be a substantial increase to the existing housing stock in the immediate vicinity and townwide. For surrounding residents, particularly long-time residents, the increase in density may be considered a change in the character of the community. Some neighbors may welcome this change, others may not. The amendments relating to the use of medium-size trees offers additional flexibility for meeting tree standards for developments with at least 50-percent affordable units. While this will allow some projects to have smaller trees at maturity, it may also make it easier for developers to include trees in locations where they would not have otherwise creating more equitable neighborhoods for residents of all income levels. The project would increase daily vehicular traffic and the potential for bike-ped conflicts points in the vicinity of the entrance, although the additional units may also serve to initiate opportunities for bus shelter improvements and new pedestrian crossings. The condition to make the multipurpose field and trail system available for Town programming and other public would provide a notable community benefit in an area that does not have access to a lot of recreation facilities.
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Climate Impact
CLIMATE IMPACT: Compact development and building with higher density can provide environmental benefits, through more efficient use of land and reduced heating/cooling needs for attached units. The additional flexibility for tree standards while reducing the canopy coverage of larger trees may ensure the inclusion of at least some canopy coverage, in an otherwise compact development, and would add new species to the list of eligible trees. The applicants have committed to incorporating energy efficient elements into the buildings and potentially to design the units as solar-ready. The HR-CC district includes, as a requirement, a perimeter buffer around the seven-parcel assembly-but some trees will be removed and replaced, but some neighbors, particularly residents in Fox Meadows who back up to the Habitat project will likely see the new units once constructed.
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